NDIA IPMD Intent Guide Ver C April292014

National Defense Industrial Association
Integrated Program Management Division
Earned Value Management Systems

ANSI/EIA-748-C Intent Guide
April 29 2014
National Defense Industrial Association (NDIA)

2111 Wilson Blvd., Suite 400
Arlington, VA 22201
(703) 522-1820
Fax (703) 522-1885
www.ndia.org
2014 National Defense Industrial Association, Integrated Program Management Division (IPMD)
Permission to copy and distribute this document is hereby granted provided that this notice is retained on all
copies, that copies are not altered, and that the NDIA IPMD is credited when the material is used to form other
copyrighted documents.
The ANSI/EIA-748-C guidelines shaded in grey within this document are reprinted with permission. The guidelines
were excerpted from the ANSI/EIA-748-C Standard and are the copyright of TechAmerica. All rights reserved. For a
complete copy of ANSI/EIA-748-C Standard, go to http://webstore.ansi.org.
Intent Guide Change History Log

Release
Date
ANSI/EIA
Version
Nov 2004
First release of the Intent Guide published on the NDIA web site. The
content of this first release was the product of a joint working group effort
between the NDIA PMSC, DCMA, and OSD.
January 2005 update revised the Purpose and Scope content with a new
Appendix A.
December 2005 update reflected a comprehensive review of the content

and incorporated comments from industry and government throughout the
document.
January 2006 update modified the copyright statement to conform to the

GEIA copyright notice for reprinting the ANSI/EIA-748 guidelines.
September 2006 update incorporated comments throughout the document

from the intelligence community.
Second release of the Intent Guide was a culmination of comments from

industry, DCMA, the intelligence community, and civilian agencies. This
release was formally recognized in a February 20, 2007 letter from Kenneth
J. Krieg, Under Secretary of Defense, Acquisition, Technology and
Logistics.
June 2009 update reflected the ANSI/EIA-748 reaffirmation process for

Version B and minor text edits. ANSI/EIA Standard Guidelines 19 and 21
revisions were incorporated. Text edits included:
Nov 2006
May 2011
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Change Summary/Notes
Purpose and Scope section to clarify the purpose of the list of typical
attributes and use of the appendix. Added a definition for critical path.
Guideline 5, Intent edits discussing one or more responsible

organizations supporting a single WBS. Added Figure 1 to illustrate.
Guideline 10, Attribute 1 was deleted.
Guideline 16, Intent edits added text to note that actual costs are
typically at the control account level.
Guideline 21, Intent, characteristics list, item 2 edits discussing material

performance measurement, and edits for list items b. and c.
Guideline 27, Attribute bullet 4 edits to reiterate actual costs at the

control account level in relation to the estimate to complete.
Third release reflected DCMA agreement for updates to Guidelines 5, 10,

and 21.
Guideline 5, Intent, second paragraph. Text was added that read:

There also may be multiple control accounts within a responsible OBS
element when the effort within a WBS element must be segregated for
management control purposes driven by scope and exit criteria (i.e.,
completion of task scope). The establishment of multiple control
accounts should be determined by the control accounts scope of the
management tasks and consideration for planning and control of
budgets, schedules, work assignments, progress assessment, problem
identification, and corrective actions.
Guideline 10, Typical Attributes. Added an attribute bullet (new first
bullet) that discussed the control account plans (CAPs) representing

the work assigned to one responsible organizational element on one
program WBS element. This added the text previously deleted in the
June 2009 back in with an additional sentence at the end that read:
Under some circumstances additional levels of detail may be needed
to segregate LOE versus Discrete effort, multiple elements of cost, and
multi-functional elements.
Guideline 21, Typical Attributes, bullet 4. Corrected the algorithms for

material price and usage variances.
This release of the Intent Guide was formally recognized as being
consistent with DoD EVM Policy in an April 20, 2011 letter from Gary R.
Bliss, Director, Performance Assessments and Root Cause Analyses
(PARCA).
B
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August 2012 update made changes to Guidelines 8 and 30.
Guideline 8, Intent. Paragraphs were added at the end of the Intent

section to discuss the option of establishing an internal operating
budget should a customer not approve an OTB.
Guideline 30, Intent. Sentence was added that read The cumulative
values for BCWS and BCWP will not be adjusted for routine direct
and/or indirect cost rate increases or decreases.
April 2014 update reflected the reaffirmation of the ANSI/EIA-748 and

comments received on the Intent Guide provided for public comment.
Incorporated updates from the ANSI/EIA-748 reaffirmation process

(Version C). This included changes incorporated into the standard text
as well as addressing comments from the reaffirmation process that
applied to the Intent Guide.
Made consistency and clarification edits throughout and applied the

standard document style used for all IPMD guides as part of IPMD
three year mandatory guide review cycle.
Removed specific references to named DID reports to use more

generic terms as a result of DID updates and broader use of the Intent
Guide.
Incorporated ease of use updates such as adding short guideline

descriptions and including them in the Table of Contents.
Changed approach to Appendix A (compliance template) so it is a

separate document that can be downloaded as a source MS Word file.
Incorporated comments from industry, the intelligence community, and

the DOE on the draft provided for public comment.
Changed all NDIA PMSC references to IPMD.
Relabeled Section 1, Purpose and Scope to Introduction and split into

three subsections: (1.1) Purpose and Scope, (1.2) Terms, and (1.3)
Applying the Guidelines to the Program Phases (new content). Added
a new Figure 1 in Section 1.3.
Added a new Figure 3 to Guideline 8.
Added an Intent Guide Change History Log.
Table of Contents
1
Introduction ......................................................................................................................... 1
1.1 Purpose and Scope ................................................................................................... 1
1.2 Terms ........................................................................................................................ 2
1.3 Applying the Guidelines to the Program Phases ........................................................ 2
Intent Guide to the EVMS Guidelines .................................................................................. 4

2.1 Organization .............................................................................................................. 4
Guideline 1 Define Work Scope (WBS) .................................................................... 4
Guideline 2 Define Project Organization (OBS) ........................................................ 5
Guideline 3 Integrate Processes .............................................................................. 6
Guideline 4 Identify Overhead Management ............................................................ 7
Guideline 5 Integrate WBS/OBS to Create Control Accounts ................................... 8
2.2 Planning, Scheduling, and Budgeting .......................................................................10
Guideline 6 Schedule with Network Logic .............................................................. 10
Guideline 7 Set Measurement Indicators ............................................................... 12
Guideline 8 Establish Budgets for Authorized Work ............................................... 14
Guideline 9 Budget by Cost Elements .................................................................... 18
Guideline 10 Create Work Packages, Planning Packages ..................................... 20
Guideline 11 Sum Detail Budgets to Control Account ............................................ 22
Guideline 12 LOE Planning and Control................................................................. 23
Guideline 13 Establish Overhead Budgets ............................................................. 24
Guideline 14 Identify Management Reserve and Undistributed Budget .................. 26
Guideline 15 Reconcile to Target Cost Goal .......................................................... 28
2.3 Accounting Considerations .......................................................................................29
Guideline 16 Record Direct Costs .......................................................................... 29
Guideline 17 Summarize Direct Costs by WBS Elements ...................................... 30
Guideline 18 Summarize Direct Costs by OBS Elements ....................................... 31
Guideline 19 Record/Allocate Indirect Costs .......................................................... 32
Guideline 20 Identify Unit and Lot Costs ................................................................ 33
Guideline 21 Track and Report Material Costs and Quantities ............................... 34
2.4 Analysis and Management Reports ..........................................................................36
Guideline 22 Calculate Schedule Variance and Cost Variance .............................. 36
Guideline 23 Identify Significant Variances for Analysis ......................................... 37
Guideline 24 Analyze Indirect Cost Variances........................................................ 39
Guideline 25 Summarize Information for Management .......................................... 40
Guideline 26 Implement Corrective Actions............................................................ 41
Guideline 27 Revise Estimate at Completion (EAC) ............................................... 42
2.5 Revisions and Data Maintenance..............................................................................44
Guideline 28 Incorporate Changes in a Timely Manner .......................................... 44
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Guideline 29 Reconcile Current to Prior Budgets ................................................... 46

Guideline 30 Control Retroactive Changes ............................................................ 48
Guideline 31 Prevent Unauthorized Revisions ....................................................... 49
Guideline 32 Document PMB Changes .................................................................. 51
3
Example Process Description Compliance Map .................................................................52

3.1 Developing a Compliance Map to the EVMS Guidelines ...........................................52
3.2 Example Compliance Map ........................................................................................53
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1 Introduction
1.1 Purpose and Scope
This Intent Guide was created by the National Defense Industrial Association (NDIA) Integrated
Program Management Division (IPMD) to provide additional insight into the ANSI/EIA-748-C
Standard for Earned Value Management Systems (ANSI/EIA-748). It is applicable to
government or industry for the purpose of documenting how an earned value management
system complies with the 32 guidelines listed in Section 2 of the ANSI/EIA-748 Standard. This
guide also provides additional context to the ANSI/EIA-748 Standard Section 3, EVMS Process
Discussion, as an aid in understanding and applying earned value management methods.
A contractor, subcontractor, or government agency that needs to demonstrate or wants
assurance that their system complies with the standard can use this intent guide to develop a
compliance map documenting how their business processes conform to the ANSI/EIA EVMS
Guidelines. The objective of the compliance map is to demonstrate that a contractor,
subcontractor, or agency has thought through each guideline and can describe how their
business process complies with the guideline.
Section 2 provides the management value, intent, typical attributes, and objective evidence
found in typical outputs for each of the guidelines listed in Section 2 of the ANSI/EIA-748
Standard. It is unnecessary for all of the typical attributes or all of the objective evidence
found in a list of typical outputs to be present for the intent of the guideline to be met.
The use of the word typical is intended to convey examples of ways, but not the only ways, of
demonstrating the intent of a guideline has been met. This guide should not be interpreted as
adding additional requirements that must be met in conforming to the ANSI/EIA-748 EVMS
Guidelines.
To be most effective, compliant business process and system documentation should be
implemented on an organizational basis instead of program by program, and the implemented
level of detail should be commensurate with the management needs of the program.
The objective is to provide integrated program management information using the organizations
resources and an EVMS implementation scaled to meet program requirements. A scaled
EVMS applies the 32 guidelines in a way that reflects the size, complexity, and type of work
effort that is necessary for the successful management of the program. This scalability allows
any program, regardless of the size and complexity, to realize the benefits of earned value
management. The concept of scalability can be effectively applied in a cost efficient manner
and also be deemed as compliant with the 32 guidelines. Other program management systems
may be integrated with the EVMS to enhance management value or applicability to contract
scope.
Different organizations must have the flexibility to establish and apply an integrated
management system that suits their management needs and business practices. The seven
principles of an EVMS that are documented in the ANSI/EIA-748 Introduction identify the
minimum requirements for a successful program earned value management implementation.
For some organizations this may result in some of the 32 guidelines as being not required or not
applicable.
Section 3 in this document provides an example of a process description compliance map. The
separate appendix document for this intent guide provides a compliance map template that can
assist in the development of a compliance map. A customer or industry reviewer of an earned
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value management system can use the compliance map as the basis for verifying compliance
with the ANSI/EIA-748 EVMS Guidelines.
In performing an assessment or verification that business processes and system documentation
complies with the ANSI/EIA-748 EVMS Guidelines, the NDIA IPMD recommends the following:
1. Contractor or government agency business processes and system documentation are
mapped to and complies with the guideline intent, typical attributes, and typical objective
evidence outputs described in this document by the process owner. See Section 3 for an
example.
2. A party independent from the documenting party verifies the compliance assessment.
3. The verifying party is versed in the ANSI/EIA-748 EVMS Guidelines.
4. The customer must recognize this method (i.e., 1 above) as applicable for the
compliance assessment verification to have meaning.
5. Customers should consider past acceptance of compliance to the ANSI/EIA-748 EVMS
Guidelines, business organization application policy, and surveillance activity before
making a management decision to perform a compliance assessment.
For ongoing verification of continued compliance with the ANSI/EIA-748 EVMS Guidelines, use
the NDIA IPMD Surveillance Guide. Other related NDIA IPMD guides include the EVMS
Application Guide, EVMS Acceptance Guide, Integrated Baseline Review (IBR) Guide, and
Planning and Scheduling Excellence Guide (PASEG). These guides are available on the NDIA
IPMD web site.
Recommended changes to this guide may be submitted to the NDIA IPMD Chair or Co-Chair for
review and update following approval of the committee. Contact names can be found on the
NDIA web site.
1.2 Terms
For definitions of common terms used in this intent guide, see Section 2.6 in the ANSI/EIA-748
Standard.
For this guide, the terms project and program are used and intended to be interchangeable.
The term critical path means the longest sequence of discrete work packages and planning
packages (or lower-level task/activity) from the current status date until the program end. The
term work package and planning package (or lower-level task/activity) is intended to provide
implementation flexibility to schedule at either the work package or lower level task/activity.
An objective of this intent guide is the planning and performance measurement of program work
scope in a manner that enables efficient integrated program management. As the management
principles of planning and performance measurement are detailed throughout this standard, the
terms effort, scope, "work," "work scope," and "program work scope" are used
interchangeably.
1.3 Applying the Guidelines to the Program Phases

The ANSI/EIA-748 Standard and this intent guide organize the 32 guidelines into five process
categories:
1. Organization
2. Planning, Scheduling, and Budgeting
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3. Accounting Considerations
4. Analysis and Management Reports
5. Revisions and Data Maintenance
While the list of guidelines is useful for reference purposes, it is also useful to illustrate how the
guidelines are applied during the implementation and execution phases of a program. This high
level process flow is illustrated in Figure 1 with cross references to the applicable guideline.
Figure 1 Applying the guidelines to the program phases
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2 Intent Guide to the EVMS Guidelines

2.1 Organization
Guideline 1 Define Work Scope (WBS)
a)
Define the authorized work elements for the program. A work breakdown
structure (WBS), tailored for effective internal management control, is commonly
used in this process.
Management Value
The Work Breakdown Structure (WBS) is used as the basic building block for the planning of all
authorized work. The WBS is a product-oriented division of project tasks depicting the
breakdown of work scope for work authorization, tracking, and reporting purposes that facilitates
traceability and provides a control framework for integrated program management. It should
ensure that the Statement of Work (SOW) is entirely covered and allow for the integration of
technical, schedule, and cost information. The WBS also facilitates communications as it
establishes a common frame of reference for customers, management, and Integrated Product
Teams (IPTs).
Intent
A WBS is a direct representation of the work scope in the project, documenting the hierarchy
and description of the tasks to be performed and their relationship to the product deliverables.
The WBS breaks down all authorized work scope into appropriate elements for planning,
budgeting, scheduling, cost accounting, work authorization, measuring progress, and
management control. The WBS must be extended to the level necessary for management
action and control based on the complexity of the work. At a minimum, the WBS is extended to
the level or levels at which control accounts are established. A WBS dictionary is typically used
to define the work scope for each unique element in the WBS.
Typical Attributes:
Only one WBS is used per project and it contains all project work, including revisions for
authorized changes and modifications.
The WBS contains all contract line items and end items.
The WBS identifies all WBS elements specified for external reporting.
The WBS is extended at a minimum to the level(s) at which control accounts are
established.
The WBS elements should collectively provide a complete definition of work scope
requirements.
The WBS may evolve as the project requirements change.
Objective evidence may be found in these typical outputs:
Work Breakdown Structure (WBS).
WBS dictionary (may or may not be used, but a method to reconcile the statement of
work to the WBS structure must be demonstrated).
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Guideline 2 Define Project Organization (OBS)

b)
Identify the program organizational structure, including the major subcontractors

responsible for accomplishing the authorized work, and define the organizational
elements in which work will be planned and controlled.
Management Value
The OBS helps management focus on establishing the most efficient organization by taking into
consideration the availability and capability of management and technical staff, including
subcontractors, to achieve the project objectives.
Intent
Assign organizational responsibility for the project work. An OBS is used to facilitate the
assignment of responsibility, accountability, and authority for all tasks to be performed. An OBS
is a direct representation of the hierarchy and provides a description of the organizations
established to provide resources as well as to plan and perform the work tasks. The OBS
identifies the organization responsible for each segment of work, including subcontracted and
intra-organizational effort. The assignment of lower-level work segments to responsible
managers should provide key control points for management purposes. When effort is
subcontracted, the applicable subcontractor is identified and related to the appropriate WBS
element(s) and/or organization charged with acquiring the subcontracted item.
Typical Attributes:
All authorized work is assigned to organizational elements.
Organization elements are work teams, functions, or whatever organization units are
used by the company for execution of the program work efforts.
Major subcontractor work efforts are integrated into the program structure.
Organization Breakdown Structure (OBS).
OBS intersections with the WBS.
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Guideline 3 Integrate Processes

c)
Provide for the integration of the companys planning, scheduling, budgeting,

work authorization and cost accumulation processes with each other, and as
appropriate, the program work breakdown structure and the program
organizational structure.
Management Value
The integration of planning, scheduling, budgeting, work authorization, and cost accumulation
management processes provides the capability for establishing the Performance Measurement
Baseline (PMB), identifying work progress, and collecting actual costs, facilitating management
analysis and corrective actions. The WBS and OBS allow summarization of cost data from the
detail level through both the WBS and the OBS to the appropriate project level needed for
management insight and control.
Intent
Integrate the technical, schedule, and cost elements of the project through project plans that
include schedules, budgets, authorization of work, and accumulation of costs, all consistent with
the budget plan. The work tasks are assigned to a WBS and OBS and are traceable to the
planning and budgeting system and the cost collection system. Establishment of a unique
coding structure facilitates the linkage between the planning, scheduling, budgeting, work
authorization, cost accumulation, and performance measurement processes.
Typical Attributes
Provide a logical framework that links the products of the management processes through
common data elements. Examples include cross-references between the statement of work and
WBS, the master schedule and performance measurement tasks, and the detail schedules and
control account plans.
Master, intermediate, and detail level schedules.
Manufacturing Requirements Planning (MRP) or Enterprise Requirements Planning

(ERP) operational schedules.
Control account plans.
Management performance reports by WBS and OBS.
Responsibility Assignment Matrix (RAM).
Statement of Work.
Work authorizations.
WBS and OBS.
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Guideline 4 Identify Overhead Management

d)
Identify the company organization or function responsible for controlling

overhead (indirect costs).
Management Value
Visibility into direct and indirect costs is essential for successful management of a project.
Therefore, it is important to have a documented process and organizations established
specifically to manage and control indirect costs.
Intent
Indirect costs are for common activities that cannot be identified specifically with a particular
project or activity and should typically be budgeted and controlled separately at the functional or
organizational manager level. Clearly identify managers who are assigned responsibility and
authority for controlling indirect costs, and who have the authority to approve expenditure of
resources. The process for management and control of indirect costs, including assignment of
responsibility, is typically documented in the organizations approved accounting procedures.
Typical Attributes:
Indirect account structure and organizational assignment/authority level are clearly

defined.
Documented process clearly defines:

o
How indirect cost resources are assigned, budgets are established, and expense
is controlled.
The personnel within the organization responsible for establishing indirect cost
budgets and authorizing/controlling indirect cost expenditures.
Cost Accounting Standards (CAS) disclosure statement.
Organizational chart.
Chart of accounts.
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Guideline 5 Integrate WBS/OBS to Create Control Accounts

e)
Provide for integration of the program work breakdown structure and the program
organizational structure in a manner that permits cost and schedule performance
measurement by elements of either or both structures as needed.
Management Value
The careful establishment of the control account structure ensures the proper level of
management is established based on the complexity of the work and the capability of the
organization. It also establishes the lowest level of performance measurement necessary for
program management.
Intent
The integration of the WBS and OBS creates control accounts that facilitate schedule and cost
performance measurement.
The control account is the point where the WBS tasks and OBS responsibility intersect. It is
defined as the point where a single functional organization or integrated product team has
responsibility for work defined to a single WBS element. There may be multiple control accounts
within a responsible OBS element when the effort within a WBS element must be segregated for
management control purposes driven by scope and exit criteria (i.e., completion of task scope).
The establishment of multiple control accounts should be determined by the control accounts
scope of the management tasks and consideration for planning and control of budgets,
schedules, work assignments, progress assessment, problem identification, and corrective
actions.
The control account is also the primary point for work authorization, work performance
management, and work performance measurement; i.e., where planned value is established,
earned value is assessed, and actual costs are collected. Each control account is assigned to a
control account manager. The control account manager is responsible for ensuring the
accomplishment of work in his or her control account and is the focal point for management
control.
Typical Attributes:
One or more control accounts are visible at the intersection of the WBS and responsible
OBS (see Figure 2).
One or more performing organizations can support a single WBS element.
The control account clearly identifies any supporting activities.
The estimated costs of work performance elements are evident.
Control accounts.
Responsibility Assignment Matrix (RAM).
Management performance reports.
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Figure 2 - Example with multiple control accounts assigned to one WBS
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2.2 Planning, Scheduling, and Budgeting

Guideline 6 Schedule with Network Logic
a)
Schedule the authorized work in a manner which describes the sequence of work
and identifies significant task interdependencies required to meet the
requirements of the program.
Management Value
Scheduling authorized work facilitates effective planning, statusing, and forecasting, all of which
are critical to the success of all projects. The integration of the technical, schedule, and cost
aspects of the project results in the:
Expected sequence of work.
Establishment of significant interdependencies between work packages and planning

packages (or lower-level tasks/activities) that determine total work time and critical path
through the project.
Time-phasing of authorized discrete work for use as a performance measurement

baseline.
Intent
The scheduling process documents and the resulting project schedule provide a logical
sequence of work leading to a milestone, event, or decision point needed to ensure that the
schedule supports the project objectives. The master schedule aligns to the contractual period
of performance except when an Over-Target Schedule (OTS) has been approved for
implementation.
There is a clear definition of what constitutes commencement and completion of each work
package and planning package (or lower-level task/activity). While no specific scheduling
software is required, there must be horizontal and vertical integration of the schedule through
the framework of the WBS and OBS.
Government development programs or significant development efforts typically schedule the
discrete authorized work through the use of a network schedule. Production programs typically
schedule using a Manufacturing Requirements Planning (MRP) or Enterprise Requirements
Planning (ERP) tool employing a line of balance schedule that supports the project objectives.
The master schedule must agree with the project objectives, include all key events, and reflect a
logical sequence of events, taking into account identified risks and opportunities. Ensuring that
all team members are working to the same project schedule is essential for monitoring progress,
analyzing variances, and tracking corrective actions.
Typical Attributes:
An integrated network scheduling system has the following characteristics:
Distinct tasks that can be summarized up through the WBS and OBS to track progress
and measure performance.
The schedule reflects all the time-phased discrete work to be accomplished that is
traceable to the WBS and the Statement of Work. For certain material activities,
including production related activities, not all discrete activities are planned in the
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integrated master schedule as they are managed through an MRP or other material
management system.
Critical target dates, project milestones, contractual events, accomplishment criteria, and
project decision points are identified and are being used to plan, status, and monitor
progress of the work.
The schedule describes the sequence of work and should consider the significant
interdependencies that are indicative of the actual way the work is to be accomplished.
The schedule links key detail work packages and planning packages (or lower-level
tasks/activities) with summary activities and milestones.
Significant interdependences should be defined at a consistent level of detail to support

development of a critical path. The minimum level linkage is at the work package and
planning package level. The schedule should be designed for effective integrated
program management purposes and contain a critical path for the entire contractual
period of performance.
Discrete tasks/activities along the critical path have the least amount of float/slack.
Each key program milestone (for example, System Design Review, Preliminary Design
Review, or Critical Design Review) must be logically linked within the master schedule
network.
Resource estimates from the budget plan are reasonable and resources are available to
support the schedule.
The schedule is reasonable as a baseline for achieving project requirements as

demonstrated through schedule analysis techniques.
The baseline schedule is the basis for measuring performance.
The schedule provides current status and forecasts of completion dates for all discrete
authorized work.
The schedule network relationships support the development of a critical path for
development projects.
The schedule network should include risk mitigation activities, as appropriate.
Integrated network schedules including master, intermediate (if any), and detailed
schedules.
MRP or ERP schedules, or planned order reports.
Control account plans (may be separate plans or detail schedules).
Work authorization documents.
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Guideline 7 Set Measurement Indicators

b)
Identify physical products, milestones, technical performance goals, or other

indicators that will be used to measure progress.
Management Value
Objective indicators enable measurement of work accomplished, thereby allowing its accurate
comparison to planned work. Meaningful performance metrics enable better management
insight and decision-making, ensuring that maximum time is allowed for management action to
keep the project on plan.
Intent
The purpose for identifying objective indicators is to provide a means to measure the quantity of
work accomplished the earned value. There is a direct relationship between the budget at
completion and earned value. The time-phased budget assigned to the work scope is the basis
for computing the earned value for work accomplished. Performance measures are one aspect
of an integrated program management system as other processes control the quality and
technical content of the work performed.
Identify objective interim performance measures within control accounts (or lower-level
tasks/activities) to enable accurate performance assessment each month. The master schedule
includes key program and contractual requirements. It enables the team to predict when
milestones, events, and program decision points can be expected to occur. Lower-tier
schedules, when utilized, must contain specific control account (or lower-level task/activity) start
and finish dates that are based on physical accomplishment and are clearly consistent with
program time constraints.
These control accounts (or lower-level tasks/activities) will align with the objective interim
performance measures to enable accurate performance assessment. A sufficient number of
interim measures will be defined after the detailed schedule is established to ensure
performance is measured as accurately as possible. Interim measures will be based on the
completion criteria developed for each increment of work and should provide a basis for
objectivity, limiting the subjectivity of the measurement of work accomplished.
Accurate schedule status depends on the selection of objective measures of progress to
indicate work completion. These measures are necessary to substantiate technical achievement
against the schedule plan and justify progression to the next control account (or lower-level
task/activity). A key feature of an interdependent schedule is that it establishes and maintains
the relationship between technical achievement and progress statusing.
Typical Attributes:
Objective completion criteria are determined in advance and used to measure progress
to determine achievement of milestones or other indicators.
Interim milestones and lower-tier tasks serve as indicators of progress against which the
control account manager monitors progress.
Integrated schedules including master, intermediate (if any), and detailed schedules that
identify contract milestones and key events.
MRP or ERP production planned order reports.
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Control account plans (may be separate plans or detail schedules).
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Guideline 8 Establish Budgets for Authorized Work

c)
Establish and maintain a time-phased budget baseline, at the control account

level, against which program performance can be measured. Initial budgets
established for performance measurement will be based on either internal
management goals or the external customer negotiated target cost including
estimates for authorized but undefinitized work. Budget for far-term efforts may
be held in higher level accounts until an appropriate time for allocation at the
control account level. On government contracts, if an over-target baseline is used
for performance measurement reporting purposes, prior notification must be
provided to the customer.
Management Value
The time-phased performance measurement baseline that represents the planned scope of all
authorized work and schedule provides the program manager a reference to assess project
performance. It is controlled and reconciled to the target cost plus authorized unpriced work less
management reserve. It represents the cumulative, time-phased, budgeted cost for work
scheduled. The performance measurement baseline is a key component of earned value
management.
Intent
The Contract Budget Base (CBB) represents the value of all authorized work. This includes the
negotiated contract cost (NCC) plus the estimated cost of any authorized unpriced work (AUW).
This CBB value forms the basis for program budgeting.
The assignment of budgets to scheduled segments of work produces a plan against which
actual performance can be compared. This is called the Performance Measurement Baseline
(PMB). The establishment, maintenance, and use of the PMB are indispensable to effective
performance measurement. The PMB should be in place as early as possible after project
award or Authorization to Proceed (ATP).
The PMB represents the time-phased scope, schedule, and associated budget through the end
of the contract. It is the sum of the control accounts plus any summary level planning packages
(SLPP) and undistributed budget. Undistributed budget is a transient account that is distributed
to control accounts, summary level planning packages, or management reserve as soon as
practical after definitization, or as contractually directed.
Budgeting is the process of distributing or allocating cost targets to individual segments of work.
Strict budget element relationships must exist at all times to assure that the sum of the parts is
equal to the whole. The hierarchy of budget elements is illustrated in Figure 3. This shows how
the intermediate summations are defined leading to the Performance Measurement Baseline,
Contract Budget Base, and the Contract Target Price. For internally funded programs
companies may use an alternative term for contract.
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Figure 3 Budget element hierarchy
This budget distribution is typically accomplished through the establishment of time-phased

resources within control accounts. For future effort that cannot practically be identified to a
control account, it is permissible to establish a temporary summary level planning package
above the control account level that identifies scope, schedule, and associated budget to the
end of the contract. The budget for this effort must be identified specifically to the work for which
it is intended, time-phased, periodically reviewed for validity, and not used to perform other
scopes of work. These summary efforts should be subdivided into control accounts at the
earliest opportunity. Planning horizons (e.g., rolling wave) may be used to determine the
appropriate time period in which to convert summary level planning packages into control
accounts. Control accounts and summary level planning packages should exist from program
start through the end of the contract.
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Since control account budgets and schedules also establish the constraints required for
baseline control, care must be exercised in the establishment of control account budgets to
ensure a viable scope/effort correlation and to prevent inadvertent front-loading of the budget
baseline. When establishing control accounts, factors to consider include the:
Natural flow of work at this management control point.
Significant program events that will be supported by completion of the effort within the
control account.
Need to enhance objective measurement of progress by establishing shorter

assessment periods.
Rate structures related to the control account resources.
The maintenance of realistic budgets, directly tied to an established scope of work, is essential
for each organization responsible for performing project effort. Eventually, all the work will be
planned by specific organizational elements to the control account level.
The PMB represents the formal plan for each control account manager to accomplish the
authorized work assigned within the time defined by the project schedule and within the budget
authorized.
During the life of a project, situations may arise whereby available budgets for the remaining
work are insufficient to ensure valid performance measurement. Under these circumstances, a
requirement may exist for the total budget allocated to work to exceed the recognized Contract
Budget Base (CBB). The resulting value is referred to as an Over-Target Baseline (OTB).
There may also be situations where the estimated completion date extends beyond the contract
completion date. Under some circumstances, it may be prudent to extend the planned
completion date beyond the contractual period of performance. The result of this extension is
referred to as an Over-Target Schedule (OTS).
When considering an OTB or an OTS, it is recommended the program review the contract for
implementation requirements. Advance notification to the appropriate parties is essential prior to
the implementation of an OTB or OTS. It is important to ensure that both internal management
and the customer have a common understanding of the impact on the performance
measurement metrics. There may be program situations or circumstances where a partial OTB
is appropriate (e.g., an individual CLIN, WBS leg, or an IPT).
When the contractor and customer project managers are satisfied that the new baseline
represents a reasonable plan for completing the contract, the new baseline becomes the basis
for future performance measurement.
If the customer does not approve the implementation of an OTB, the contractor could:
1. Establish an internal Operating Budget (OB) for those elements that no longer have
realistic budgets to foster continued early visibility. Note the Operating Budget (OB) also
facilitates continued performance measurement practices by the respective control
account managers. This capability allows for alternatives for effective management
other than OTB, such as rework.
2. The internal Operating Budget (OB) would require internal factoring of the respective
BCWS, BCWP, and BAC, so that the total WBS elements BAC, BCWS, and BCWP
values will not exceed the PMB values.
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Typical Attributes:
The PMB reflects the work scope, time-phased consistent with the integrated schedule.
The PMB reflects the budget value for the work scope in all control accounts and
summary level planning packages.
Control account budgets reflect the resources planned to perform the work and can only
exceed the contract budget base when an over-target baseline is employed.
Summary level planning packages.
Performance measurement baseline.
Undistributed budget logs.
Notification to the customer of an over-target baseline or over-target schedule.
Work authorization document.
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Guideline 9 Budget by Cost Elements

d)
Establish budgets for authorized work with identification of significant cost

elements (labor, material, etc.) as needed for internal management and for
control of subcontractors.
Management Value
An essential part of project planning and establishing a performance measurement baseline is
the establishment of budgets for all the authorized work. Identification of the budget cost
elements documents the required resources and places work scope with the performing
organization.
Intent
Through a work authorization process, establish budgets for all authorized work to be done by
the responsible organizational elements. No work should begin before the effort is authorized by
an initial work authorization. As budgets and schedules are established and approved for all the
authorized work at the control account level, the work authorization is updated as required. The
work authorization at the control account level is where the approved work scope, period of
performance, and budget are integrated. The control accounts identify the appropriate cost
elements (labor, subcontract, material, and other direct costs). It is important to include all
resources required to accomplish the work scope.
Each control account should contain resources necessary to complete the assigned effort and
budgets reflecting these resources. Budgets established at the control account level must be
planned by element of cost. In addition:
Budgets may be stated in dollars, hours, or other measurable units.
It is necessary to use proper rates that will provide a valid performance measurement
baseline.
In general, the budget process provides for the following:

o
Direct budgets allocated to organizations performing the planned work.
Indirect budgets allocated to specific organizations having responsibility for

controlling indirect costs.
Identification of any management reserves or undistributed budget.
Material and subcontractor aspects must also be considered, including:
Time-phasing of material budget should be consistent when the material is expected to

be received, consumed, or paid. Guideline 21 addresses material accounting issues that
may affect the time-phasing of material budgets.
Budgets for subcontractors are time-phased to support program schedule requirements.
Typical Attributes:
Internal reports. Show budgets for each control account, and show that these budgets
are reconcilable to the budget values shown on the latest control account/work package
plans and in the work authorization documents.
Control account/work package plans. Budgets are identified by element of cost (i.e.,
direct labor dollars/hours, material or subcontract dollars, and other direct costs).
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Responsibility assignment matrix (dollarized). Represents the complete project plan and
budget. The budget is based on detailed estimates of the amounts of labor, materials,
and other resources required to complete the work associated with each control account.
Resource plan. Identifies the resources needed to accomplish the work and assign
resources to tasks in the master schedule.
Internal reports. Identifies control account budgets that can be summarized to

organizational elements. Differentiation is made between direct cost budgets and those
that include indirect costs.
Control account plans by element of cost.
Performance measurement baseline.
Undistributed budget logs.
Bills of Materials (BOM).
Responsibility assignment matrix (dollarized).
Schedules, if resourced.
Resource plan for resources not contained in the control account plans.
Material requirements documentation identifying when the material is expected to be

used.
Subcontractor schedules.
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Guideline 10 Create Work Packages, Planning Packages

e)
To the extent it is practicable to identify the authorized work in discrete work

packages, establish budgets for this work in terms of dollars, hours, or other
measurable units. Where the entire control account is not subdivided into work
packages, identify the far term effort in larger planning packages for budget and
scheduling purposes.
Management Value
Budgets, established at the work package level identifying specific resource requirements in
dollars, hours, or other measurable units, provide the detail for effective execution of the
baseline plan. The resources are to be time-phased the way the detail work is to be
accomplished. This approach provides meaningful product-related or management-oriented
events for performance measurement. Where a control account cannot be planned in work
package detail, the work scope, budget, and schedule requirements are held in planning
packages. The master schedule may have more detail below the work package/planning
package level to support the development of a realistic critical path, as applicable.
Intent
Effort contained within a control account is distributed into either work packages or planning
packages. Work packages are single tasks assigned to a performing organization for completion
and are natural subdivisions of control account effort, resulting in a definable end product or
event. Work package descriptions must clearly distinguish one work package effort from
another. When work packages are relatively short, little or no assessment of work-in-progress is
required. As work package length increases, work-in-progress measurement becomes more
subjective, unless objective techniques, such as discrete milestones with pre-assigned budget
values or completion percentages, subdivide them. A key feature, from the standpoint of
evaluating accomplishment, is the desirability of having work packages that incorporate
frequent, objective indicators of progress.
Each work package will have the following characteristics:
It represents units of work at the level where work is performed.
It is clearly distinguishable from all other work packages.
It is assigned to a single organizational element, or in an integrated product team

environment, to a single integrated product team responsible for multiple functional
disciplines performing the scope of work.
It has scheduled start and completion dates and, as applicable, interim milestones, all of
which are representative of physical accomplishment.
It has a budget or assigned value expressed in terms of dollars, labor hours, or

measurable units that is substantiated by supporting project plans.
Its duration is limited to a relatively short span of time. A longer task needs objective
intermediate measures to enable accurate performance assessments.
It is consistent with detailed engineering, manufacturing, or other schedules.
It has material costs segregated from other elements of cost.
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It has subcontract effort consistent with subcontractor program plans. Subcontractor and
contractor plans are directly reconcilable.
Work for a given control account that cannot be planned in detail at the outset will be divided
into larger segments and placed into planning packages within the control account. Planning
packages are aggregates of future tasks and budgets, beyond those planned in detail that will
be divided into work packages at the earliest practical time. Time-phased budgets assigned to
planning packages must be supported by a specified scope of work and this relationship must
be maintained when detailed planning of the effort occurs.
Typical Attributes:
Control Account Plans (CAPs) represent the work assigned to one responsible
organizational element on one program WBS element. This is the lowest level in the
structure at which the comparison of actual costs to planned budgets and earned value
is normally required. It is also the cost collection point that identifies the cost elements
with the factors contributing to cost or schedule variances. Under some circumstances
additional levels of detail may be needed to segregate Level of Effort (LOE) versus
discrete effort, multiple elements of cost, and multi-functional elements.
Work packages represent detailed jobs, except for those that are for material items.
They are units of work at levels where work is performed and are clearly distinguishable
from all other work packages. They are:
Assigned to a single organizational element.
Have scheduled start and completion dates and, as applicable, interim

milestones.
Have a budget or assigned value expressed in terms of dollars, labor hours, or

other measurable units.
Have duration limited to a relatively short span of time, or are subdivided by

discrete value milestones to facilitate the objective measurement techniques of
work performed, or are LOE work packages integrated with detailed engineering,
manufacturing, or other schedules.
A planning package is the logical aggregation of work within a control account, normally
the far-term effort, that can be identified and budgeted in early baseline planning, but
cannot yet be defined into discrete, apportioned, or level of effort work packages.
Planning package plans must reflect the manner in which the work is to be performed.
Control account plans divided into work packages and planning packages.
Control account schedules.
Control account time-phased budgets.
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Guideline 11 Sum Detail Budgets to Control Account

f)
Provide that the sum of all work package budgets plus planning package budgets
within a control account equals the control account budget.
Management Value
The integrity of the performance measurement baseline requires that the budget of the control
account equal the sum of its work package and planning package budgets. When the budget of
the control account equals the sum of its work package and planning package budgets, it
prevents duplicate recording of budgets.
Intent
All control accounts must contain a budget, schedule, and scope of work and should realistically
represent the work assigned and budgeted to the organizational units. In all cases, the value of
the budget assigned to individual work packages and planning packages within the control
account must sum to the total value authorized for the control account. A control account
manager should not have a budget without an assigned scope of work. Conversely a control
account manager should not have authorized scope without associated budget.
Typical Attributes:
Control Account Plans (CAPs) usually represent the work assigned to one responsible
organizational element on one program work breakdown structure element; they are usually at
the lowest level in the structure at which the comparison of actual costs to planned budgets and
to earned value are required; they are the cost collection points that will identify the cost
elements and factors contributing to cost or schedule performance.
Control account plan total budget.
Work package budget.
Planning package budget.
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Guideline 12 LOE Planning and Control

g)
Identify and control level of effort activity by time-phased budgets established for
this purpose. Only that effort which is not measurable or for which measurement
is impracticable may be classified as level of effort.
Management Value
Meaningful product- or management-oriented events are critical for performance measurement.
Objective measurement of Level of Effort (LOE) activity is impracticable and provides little, if
any, visibility into actual performance; therefore, its use must be minimized.
Intent
Each task on the project needs to be assessed to determine the best method to budget and
measure its progress toward completion. Level of effort is defined as having no measurable
output or product that can be discretely planned at the work package level. Level of effort must
be limited to those activities that are unable to be measured discretely to avoid distorting project
performance data. Level of effort work packages should be separately identified from discrete
effort work packages and apportioned effort work packages. Budgets for level of effort activity
must have a sound basis of estimate and be time-phased to properly reflect when work will be
accomplished. LOE budgets may be planned at either the control account level or at the same
level as discrete or apportioned work packages.
Typical Attributes
Level of effort work packages contain tasks of a general or supportive nature that do not
produce definite end products, must be separately evaluated from discrete work packages
within the control account, and contain time-phased budgets for planning and control.
The amount of LOE activity will vary among performing organizations, but it must be held
to the lowest practical level.
Level of effort budgets should be separately substantiated and planned as direct labor,
material/subcontract, or other direct costs. Level of effort should be budgeted on a timephased basis for control and reporting purposes.
If level of effort and discrete work packages are ever mixed within the same control
account, the control account manager must ensure visibility into the earned value
technique for measuring performance of the discrete effort portion.
The earned value for level of effort work packages equals the time-phased budget.
Control account plans identify level of effort work packages and budgets.
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Guideline 13 Establish Overhead Budgets

h)
Establish overhead budgets for each significant organizational component of the

company for expenses which will become indirect costs. Reflect in the program
budgets, at the appropriate level, the amounts in overhead pools that are
planned to be allocated to the program as indirect costs.
Management Value
The overall value of establishing indirect budgets lies in the ability of company management to
manage cost elements that cannot be directly assigned to individual cost objects (products). By
comparing actual indirect expenses to established indirect budgets, the company can determine
if the absorption of indirect expenses based on existing documented allocation schemes is on
track or if allocation rates will need to be adjusted. The accurate assignment of indirect
expenses, therefore, ensures that each program will only receive its fair share of indirect costs.
Intent
Establish indirect budgets at the appropriate organizational level for each pool and cost subelement. It is important to have an indirect budgeting and forecasting process, because indirect
costs can account for a major portion of the cost of any project. As such, the budgetary control
and management of this category of cost cannot be overlooked or minimized. Indirect budgets
on the project are established and planned with the established direct budgets consistent with
the method by which allocation of indirect costs will ultimately be made to the project. This
methodology is normally described in the organizations accounting procedures.
Typical Attributes:
Organization charts are established that identify the personnel or organizations

responsible for maintaining the indirect costs.
The organizations indirect cost policies and procedures are documented and represent
a rational, traceable process.
Cost Accounting Standards (CAS) established by the Cost Accounting Standards Board
(CASB) ensures consistent and proper accounting for direct and indirect costs that are
applied to government contracts. Direct costs are any cost that may be identified
specifically with a particular cost objective; indirect costs are costs that, because of their
incurrence for common or joint objectives, are not readily subject to treatment as direct
costs.
CAS disclosure statement defines the content and processes of the organizations
management of indirect costs and generally includes a definition of indirect expenses
and indirect cost pools.
Forward pricing forecasts identify projected indirect cost rates beyond current year.
Documented process for managing indirect costs.
Organizational structure identifying ownership responsibility and authority levels.
Indirect cost policies and procedures.
Chart of accounts.
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Organizational charts.
Forward pricing forecast (including sales forecast and business base projections).
CAS disclosure statement, if applicable.
Indirect budget and performance reports.
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Guideline 14 Identify Management Reserve and Undistributed Budget

i)
Identify management reserves and undistributed budget.
Management Value
Project managers must realize that the performance measurement baseline planning process
contains risks and opportunities, and should identify a Management Reserve (MR) contingency
account for unplanned activity within the project scope. Unexpected work scope growth within
the contract SOW, rates changes, or schedule slips are examples of situations that may make
the amount of performance measurement budget assigned to an individual control account
manager inadequate. This facilitates maintaining budgets for work accomplished and provides
effective performance measurement data for management.
To ensure that budget for newly authorized efforts remains tied to the associated scope during
the initial planning process, Undistributed Budget (UB) has been designated as the short-term
holding account. Once the responsible organization(s) has been identified, the budget will
transfer from undistributed budget to the appropriate control account(s). This ensures budget
and scope will not be transferred independently.
Intent
Identify and control management reserve and undistributed budget. Management reserve is
budget set aside for unplanned events that may arise during the course of the project. Because
management reserve is budget that is not yet tied to work, it does not form part of the
performance measurement baseline. The management reserve budget should be
commensurate with the level of risks and opportunities identified by the project or withheld for
management control purposes.
Management reserve is not a contingency that can be eliminated from prices during subsequent
negotiations, or used to absorb the cost of program changes. The budget being held in reserve
must not be viewed by a customer as a source for added work scope.
Undistributed budget is budget that is applicable to specific project effort, but has not yet been
distributed below the project level either directly to control accounts or to summary level
planning packages. It is a transient amount because, once it is distributed to either control
accounts or to summary level planning packages, it ceases to be undistributed budget. Because
undistributed budget is budget that is tied to work, it does form part of the performance
measurement baseline. Undistributed budget accounts are to be cleared in a reasonably timely
manner as work scope is finalized and distributed to control accounts or to summary level
planning packages.
Typical Attributes:
Program control logs including:

o
Management reserve (showing month end values; monthly sources and

applications to control accounts; and current value).
Undistributed budget (showing month end values; monthly sources and

applications to control accounts; current value).
Performance measurement baseline (showing month end values; monthly

changes from/to management reserve and undistributed budget; current value).
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Contract budget base (showing month end values; monthly changes identifying
contract modifications; current value).
Monthly performance reports to verify that starting and ending values are consistent with
various logs.
Project control logs (management reserve, undistributed budget, performance

measurement baseline, and contract budget base).
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Guideline 15 Reconcile to Target Cost Goal

j)
Provide that the program target cost goal is reconciled with the sum of all internal
program budgets and management reserves.
Management Value
A project baseline that reflects the common agreement between the two parties provides a
common reference point for progress assessment. It provides recognition of contractual
requirements and precludes unauthorized changes to the performance measurement baseline.
The project target cost must be reconciled with the performance measurement baseline and
management reserve.
Intent
Reconcile the project value (target cost plus authorized, unpriced work) with the sum of all
control account budgets, indirect budgets, management reserves, and undistributed budgets.
This is illustrated in guideline 8 Figure 3.
Typical Attributes:
Program control logs including:

o
Management reserve (showing month end values; monthly sources and

Undistributed budget (showing month end values; monthly sources and

Performance measurement baseline (showing month end values; monthly

changes from/to management reserve and undistributed budget; current value).
Contract budget base (showing month end values; monthly changes identifying
contract modifications; current value) reconciled to program target cost.
Total allocated budget reconciled to the contract budget base and any
recognized over-target baseline.
Contract and modification control logs identifying authorized target cost.
Project control logs (management reserve, undistributed budget, performance

measurement baseline, and contract budget base) reconciled to project target cost.
Internal report showing the summarization from cost account to the performance
measurement baseline.
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2.3 Accounting Considerations

Guideline 16 Record Direct Costs
a)
Record direct costs in a manner consistent with the budgets in a formal system
controlled by the general books of account.
Management Value
Direct cost must be assigned to a project consistent with the pertinent budgets in order to
achieve effective performance management. A projects cost-charging structure established in
the accounting system should help ensure that actual costs collected are directly compared with
associated budgets for that work.
Intent
Accumulate direct costs in the formal accounting system in a manner consistent with the way
the related work is planned and budgeted. Actual costs reported in the performance reports
agree with the costs recorded in the general books of account (accounting system) or can be
explained as timing differences. At a minimum, actual costs are collected at the control account
level to enable summarization of cost by both the WBS and OBS. Timing differences that may
occur between the accounting system and project performance reports must be reconcilable.
Of particular interest is the accounting for material (i.e., at consumption, receipt, inventory
acceptance, or inventory release). The basic requirement is to account for materials in a manner
consistent with the way in which materials are budgeted.
Subcontracts also require special consideration. Subcontract costs must be accrued in a timely
manner consistent with the schedule status. This may require the use of estimated costs or the
equivalent import from the subcontractors books of record or report.
Typical Attributes:
Contractors accounting manual/procedures identifying the methodology of handling

various actual costs.
Contractors cost accounting standards disclosure statement identifying treatment of

direct costs (direct material, labor, and other direct costs), indirect costs, depreciation
and capitalization, and other costs and credits.
Control account actual costs/general ledger reconciliation.
Contractors process to ensure actual costs and performance are recorded in the same
accounting period.
Reconciliation of project costs with the accounting system.
Actual costs are reported at the control account level at a minimum.
Reconciliation of subcontract reported actual costs to subcontract payments.
Internal and external performance reports for subcontractors.
Subcontractor control account plans, when used.
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Guideline 17 Summarize Direct Costs by WBS Elements

b)
When a work breakdown structure is used, summarize direct costs from control
accounts into the work breakdown structure without allocation of a single control
account to two or more work breakdown structure elements.
Management Value
Actual costs need to be available at all levels of the WBS to support project management with
performance measurement data. Cost collection accounts mapped to the WBS. The WBS rollup structure contains no division/allocation of lower-level cost to multiple higher-level WBS
elements, which helps to ensure performance measurement data integrity when summarized by
WBS.
Intent
A work order/job order/task code charge number structure must exist that uniquely identifies
costs at the control account level allowing for accumulation and summarization of costs to
higher levels of the work breakdown structure. Through the use of this coding structure,
allowable costs collected within the control account by element of expense roll-up from the
control account level through the WBS to the top level without being divided among two or more
higher-level WBS elements. Cost collection accounts map to the WBS, and the WBS roll-up
structure contains no division/allocation of lower-level cost to multiple higher-level WBS
elements. When common costs are collected in separate control accounts for like items or
services they are allocated to appropriate control accounts in each project.
Typical Attributes:
Cost collection account structure showing charge number hierarchy.
WBS structure (roll-up scheme) showing hierarchy of WBS elements, control accounts,
and work packages.
WBS/cost collection mapping showing the relationship between charge numbers and
control accounts or work packages.
The program established cost charging structure will help to ensure that actual costs are
collected so that direct comparison with associated budgets can be made at the
appropriate WBS level(s).
Cost collection account structure.
WBS/cost collection mapping.
WBS structure (roll-up scheme).
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Guideline 18 Summarize Direct Costs by OBS Elements

c)
Summarize direct costs from the control accounts into the contractors
organizational elements without allocation of a single control account to two or
more organizational elements.
Management Value
Actual costs need to be available at all levels of the OBS to support project management with
performance measurement data. Cost collection accounts mapped to the OBS, and the OBS
roll-up structure containing no division/allocation of lower-level cost to multiple higher-level OBS
elements, helps to ensure performance measurement data integrity when it is summarized by
OBS.
Intent
Allowable costs collected within the control account by element of expense roll-up, from the
control account level through the OBS, to the top level without being divided at any level among
two or more higher-level elements. This guideline and the one before it are identical, with the
exception that this one deals with OBS data summarization while the previous one dealt with
WBS data summarization. In either case the intent is the same: actual cost collected at the
control account level may not be rolled up (i.e., summarized) to multiple higher-level elements.
When common costs are collected in separate control accounts for like items or services, they
are allocated to appropriate control accounts in each project.
Typical Attributes:
Organization charts showing the contractors organizational hierarchal structure.
Responsibility assignment matrix showing each of the intersections of OBS

organizations and WBS elements (i.e., each control account).
OBS structure (roll-up scheme) showing the relationship of charge numbers to the OBS.
The program-established cost charging structure, which will help ensure that actual
costs are collected so that direct comparison with associated budgets can be made at
the appropriate organizational level(s).
Responsibility assignment matrix.
Organization charts.
OBS structure (roll-up scheme).
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Guideline 19 Record/Allocate Indirect Costs

d)
Record all indirect costs which will be allocated to the program consistent with
the overhead budgets.
Management Value
Visibility into direct and indirect costs is essential for successful management of a project.
Therefore, it is important to have a documented process and organizations established
specifically to manage and control indirect costs.
Intent
Indirect costs are for common activities that cannot be identified specifically with a particular
project or activity and should typically be budgeted and controlled separately at the functional or
organization managerial level. Record all indirect costs for the project in the accounting system.
Allocate them to the recorded direct costs per the documented procedure to ensure that all
projects benefiting from the indirect costs will receive their fair share.
Typical Attributes:
Cost collection account structure. Identifies the chargeable object for all cost centers.
WBS/cost collection mapping. Identifies the responsible organization for budgeting and
controlling indirect cost; time-phased budgets/forecasts established at same level as
cost collection for comparison.
WBS structure (roll-up scheme). Hierarchy scheme from point of the allocation to
WBS/OBS up to the total program level.
Cost accounting standards disclosure statement. Identifies the allocation base and
indirect cost pools by functional element of cost.
Accounting procedures. Shows that the responsible organization for incurring indirect
cost corresponds to the level of management control and categorizes fixed and variable
cost methods of control.
Organization chart. Identifies management responsibility for controlling indirect staff and
ability to influence indirect costs.
Cost collection account structure.
WBS/cost collection mapping.
WBS structure (roll-up scheme).
Cost accounting standards disclosure statement.
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Guideline 20 Identify Unit and Lot Costs

e)
Identify unit costs, equivalent unit costs, or lot costs when needed.
Management Value
A manufacturing accounting system capable of isolating unit and lot costs in a production
environment should allow the flexibility to plan, measure performance, and forecast in a more
efficient way when there are multiple projects in the same production line.
Intent
When using equivalent units, or lot costs budgeting, ensure that the accounting system
produces actual unit, equivalent unit, or lot costs for purposes of measuring cost performance.
Typically this is accomplished through the use of a charge number structure, the manufacturing
planning systems, or equivalent capability. On production contracts or projects where multiple
similar units are being delivered, or when units are taken off the line in more or less a random
order according to the delivery agreements of the different customers projects, it is sufficient to
establish equivalent unit cost (i.e., all things being equal, each units cost is approximately
equivalent to every other units cost).
Typical Attributes:
Manufacturing Requirements Planning (MRP) project cost collection structure.
Enterprise Requirements Planning (ERP) support the identification of unit costs,

equivalent unit costs, or lot cost when needed including differentiation of work in
process. Expressed in terms of labor, material, other direct cost, indirect cost, as well as
distinguishing between recurring (e.g., production) and non-recurring (e.g., design,
development, travel, and non-recurring expense) costs.
Identify unit, equivalent unit, or lot costs by type and amount of material as necessary on
production-type efforts.
Project cost collection structure (MRP).
ERP system supports the identification of unit costs, equivalent unit costs, or lot costs
when needed, including differentiation of work in process.
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Guideline 21 Track and Report Material Costs and Quantities

f)
For EVMS, the material accounting system will provide for:
1)
Accurate cost accumulation and assignment of costs to control accounts in a

manner consistent with the budgets using recognized, acceptable, costing
techniques.
2)
Cost recorded for accomplishing work performed in the same period that earned
value is measured and at the point in time most suitable for the category of
material involved, but no earlier than the time of actual receipt of material.
3)
Full accountability of all material purchased for the project including the residual
inventory.
Management Value
The establishment of a valid comparison of planned material costs for completed work with the
actual material costs for that work provides the basis for realistic evaluation of cost deviations
and ultimately facilitates cost at complete projections. Residual inventory provides visibility into
excess material for the current deliverables available for replacement of failures in the current
project or future projects having similar deliverables.
Long lead critical material items may require special considerations for planning and measuring
progress. Contracting methods should be considered that support objectives and promote the
use of progress methods to meet the needs of integrated program management.
Intent
Material accounting systems must adhere to these three characteristics:
1. The material accounting system provides full accountability for all material (including
residual inventory) purchased for the project.
2. Material costs must be accurately charged to contract control accounts using
recognized, acceptable costing techniques. The need for accurate comparison of

material costs to material budgets and earned value requires that the appropriate point
of performance measurement for material is established. The generally acceptable
points for measuring material progress are:
a. Point of receipt (acceptance),
b. Point of stock (inventory), and
c.
Point of issue to work in process (consumption).
3. When necessary and significant, and when material actuals are not yet available, the
use of estimated Actual Cost of Work Performed (ACWP) is required to ensure accurate
performance measurement.
Typical Attributes:
Performance reports showing material cost/schedule variances, earned value claimed in

the same accounting period as actual costs, material performance recorded no earlier
than material receipt, issue from inventory, or material consumption.
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Control account plans showing time-phased material budgets and earned value
techniques, which could include making a distinction between high value and low value
material.
The material system needs to account for various methods of charging material cost
from inventory in accordance with cost accounting standards inventory costing methods;
i.e., First-In, First-Out (FIFO); moving average; weighted average; standard cost; and
Last-In, First-Out (LIFO). Identify accountability for all material purchased for the
program including material issues to control accounts, return of unused material, scrap
quantity and disposition, and residual inventory.
Price and usage material analysis where useful. Price Variance = (Earned Value Unit
Price - Actual Unit Price) x Actual Quantity. Usage Variance = (Earned Value Quantity Actual Quantity) x Earned Value Unit Price. Quantity breakouts are most useful on
programs procuring multiple items of the same part number, typical for production type
contracts.
Material unit or lot costs are identified when situations of multiple concurrent units of
homogenous items make tracking individual components impracticable.
Material system reports.
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2.4 Analysis and Management Reports

Guideline 22 Calculate Schedule Variance and Cost Variance
a)
At least on a monthly basis, generate the following information at the control

account and other levels as necessary for management control using actual cost
data from, or reconcilable with, the accounting system:
1)
Comparison of the amount of planned budget and the amount of budget earned
for work accomplished. This comparison provides the schedule variance.
2)
Comparison of the amount of the budget earned and the actual (applied where
appropriate) direct costs for the same work. This comparison provides the cost
variance.
Management Value
Earned Value Management System (EVMS) performance data reconciles to the general books
of account (accounting system) and provides for management control. Visibility into project
performance helps the project manager to focus resources on those areas in need of attention.
Intent
On at least a monthly basis, generate schedule variance and cost variance data that supports
management control needs by allowing the project manager to focus on those areas in need of
attention. The intent of this guideline is to recognize that analysis must be accomplished on a
regular, periodic basis. It is critical that the calculation of earned value (see guidelines 7 and 10)
be based consistently with the manner used to establish the budgets (see guidelines 8, 10, and
12). This ensures a generation of valid variances for analysis purposes. All data analyzed must
come from, or be reconcilable with, the earned value management system (BCWS, BCWP, and
ACWP) and the accounting system.
Typical Attributes:
Monthly performance report:

o
Budget, earned value, and actual costs (reconcilable with the accounting
system).
Cost Variance (CV).
Schedule Variance (SV).
Variance at Completion (VAC).
Variance analysis narrative (root causes, impacts at completion, and

management actions).
Summarized performance measurement data from control account (minimum) through

WBS/OBS hierarchy to the program level.
Monthly performance reports (cost variance, schedule variance, and variance at

completion analysis).
Variance analysis data (root causes, impacts at completion, and management actions).
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Guideline 23 Identify Significant Variances for Analysis

b)
Identify, at least monthly, the significant differences between both planned and
actual schedule performance and planned and actual cost performance, and
provide the reasons for the variances in the detail needed by program
management.
Management Value
The ability to analyze deviations from the established plan permits management at all levels to
rapidly and effectively implement corrective actions in an effort to regain project/contract
objectives. Without this visibility into and the understanding of plan deviations, the success of
the project can be jeopardized. Additionally, insight into future cost and schedule performance,
based on the analysis of variances, will be facilitated.
Intent
The purpose of this guideline is to ensure both significant schedule and cost variances are
analyzed, at least monthly, at a level of detail required to manage the effort; i.e., to enable
management decision-making and corrective action.
Comparing the budget value of work completed to the budget value of work scheduled during a
given period of time provides a valuable indication of schedule status in terms of dollars-worth of
work accomplished. This schedule variance (SV) may not clearly indicate whether or not
scheduled milestones are being met, since some work may have been performed out of
sequence or ahead of schedule while other work has been delayed. Schedule variance does not
indicate whether a completed activity is a critical event or if (or by how much) delays in an
activitys completion will affect the completion date of the project.
A formal time-phased, time-based scheduling system must provide the means of more clearly
determining the status of specific control accounts (or lower-level tasks/activities), milestones,
and critical events. Schedule analysis must address the time impact to the schedule plan when
a significant variance exists. By addressing the time impact for each significant variance, a true
and representative impact to the schedule plan is quantified. A key concept required to support
schedule analysis is to ensure that work is planned in discrete elements that reflect actual
accomplishment. This helps to ensure that time-based schedule variances are ultimately
reported. The analysis should identify potential schedule accomplishment and milestone
problems with respect to the integrated network schedule and thus help to ensure routine
evaluation of the critical path, as applicable.
Comparing the budgeted value of work completed to the actual cost of that work provides a
valuable indication of the cost efficiency of work accomplished. This cost variance provides
management an indicator of actual cost problems and may be trended to see future impacts.
Cost variance may be discussed in terms of rate impact versus volume (hours) impact for the
significant elements of cost. Only variances that have a significant impact on the execution of
the project should be analyzed in detail. Project procedures defining thresholds are normally
used to define the significant level applicable to that situation.
Typical Attributes:
Schedule (time-based) and cost (budget-based) variances are identified at an actionable

level.
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Variance causes and impacts are identified in sufficient detail needed for project
management.
Corrective actions are implemented in a timely manner.
Price/usage analysis, as applicable, for production material efforts.
Variance analyses (budget based schedule variances and cost variances).
Management action plans.
Updated schedule task completion and cost-at-completion forecasts.
Project schedules and schedule analysis outputs.
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Guideline 24 Analyze Indirect Cost Variances

c)
Identify budgeted and applied (or actual) indirect costs at the level and frequency
needed by management for effective control, along with the reasons for any
significant variances.
Management Value
Ongoing indirect cost analysis provides visibility into potential indirect cost overruns and the
opportunity to develop and implement management action plans to meet project objectives.
Intent
Indirect rate forecast and control are crucial to meeting project cost objectives. This guideline
requires a monthly indirect cost analysis, by those assigned responsibility, comparing indirect
budgets to indirect actual costs and explaining the cause of resultant variance(s). The
importance of analyzing indirect cost performance requires the exercise of maximum discipline
in following the established indirect cost control procedures. The results of indirect analysis are
provided to program and business managers for their use in forecasting the impact to the
program Estimate at Completion (EAC).
Typical Attributes:
Indirect cost variance analyses:

o
Budget costs compared to actual costs by element of indirect cost from the
management control point up through WBS/OBS to the program level.
Variance thresholds by indirect cost category.
Responsible indirect cost manager identifies root cause(s) (i.e., usage variance,
change in business volume, or rate variance due to a change in the direct base).
Indirect management action plans:

o
Corrective action plans identified to reduce or eliminate variance.
Performance metrics.
Indirect cost variance analyses.
Indirect cost management action plans.
Indirect cost updated schedule and cost forecasts.
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Guideline 25 Summarize Information for Management

d)
Summarize the data elements and associated variances through the program
organization and/or work breakdown structure to support management needs
and any customer reporting specified in the project.
Management Value
Understanding the relationship among scope, cost, schedule, and risk is critical to successful
project execution. Variances provide an understanding of project conditions, allowing the project
manager to properly address project issues, risks, and opportunities. They also identify
significant problem areas coming from all levels of the organization and project scope of work,
derived from the same data sources. Variances provide valuable management information.
Intent
Use the same data for internal management needs and for reporting to the customer. Since the
WBS and the OBS exist as a formal and disciplined framework for project management and
also provide a formal structure for the comprehensive roll-up of all data elements, they become
the ideal framework for summarizing data from the control account level to the management
reporting level. Summarizing performance information assists senior levels of management to
focus on the significant problems that require their intervention.
Typical Attributes:
Variance analyses. Internal/external reporting thresholds and narrative analysis

providing root cause, impact, and corrective action.
Schedule and cost performance reports. Schedule variance, cost variance, and variance
at completion from control account up through WBS/OBS reporting structure hierarchy to
total program level.
Management action plans. Corrective action plan/mitigation plan, task, milestones, exit
criteria, and schedules.
Variance analyses.
Schedule and cost performance reports.
Management action plans.
Updated schedule and cost forecasts.
Risk and opportunity management plans (identification, analysis, and handling).
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Guideline 26 Implement Corrective Actions

e)
Implement managerial action taken as the result of earned value information.
Management Value
Earned value management information provides management with early insight into the extent
of problems. Management action is required to mitigate the impacts on the project objectives.
Intent
Identify and implement corrective actions based on earned value variance analysis to achieve
project objectives. Regular monitoring of the performance data helps keep the program within its
cost and schedule baseline objectives.
Performance measurement data should be utilized by all levels of management to promote
effective project execution. Because of this, the data produced by the earned value
management system must be available to managers on a timely basis and must be of sufficient
quality to ensure that effective integrated program management decisions can be made as a
result of its analysis. The projects internal reports and the reports forwarded to their customer
must indicate the overall cost and schedule impacts of such problems on the project.
For effective management control, the corrective actions should be identified at the appropriate
level and then tracked to resolution and closure. A managers assigned action should have
sufficient authority and control over the resources to effectively implement the corrective action
requirements.
Typical Attributes:
Follow-up of the implementation to verify what was planned was implemented.
Reasonableness of the corrective action.
Validity of the problem identified.
To-Complete Performance Index (TCPI).
Independent completion estimates.
Risk and opportunity management data and similar metrics.
Management action plans and review briefings.
Variance analyses.
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Guideline 27 Revise Estimate at Completion (EAC)

f)
Develop revised estimates of cost at completion based on performance to date,

commitment values for material, and estimates of future conditions. Compare this
information with the performance measurement baseline to identify variances at
completion important to company management and any applicable customer
reporting requirements including statements of funding requirements.
Management Value
A properly established and maintained estimate at completion (EAC) will ensure continuing
visibility into the cost, schedule, risks and opportunities, as well as the resource needs (e.g.,
labor, material, etc.) for the remaining work that is essential to project success for both the
customer and the contractor. Accurate estimates support the customers ability to provide
sufficient funding to the project and enhance internal managements visibility into critical issues
and resource requirements.
Intent
The control account level is where the approved work scope, period of performance, budget,
and estimate at completion (EAC) are integrated. The estimates at completion are summarized
up through the WBS and OBS to the program level for management visibility and control. The
control account managers are responsible for maintaining the control account level latest
revised estimate to complete that is assessed on a monthly basis. Periodically, a
comprehensive or bottom-up estimate at completion should be prepared using all available
information to arrive at the best possible estimate at completion.
For the monthly estimates to complete (ETC), the control account manager should review the
status of the expended effort and the achievability of the forecast and significant changes
briefed to program management. This analysis should focus on performance to date within the
control account, an assessment of the effort to complete the remaining work, and an evaluation
of the type and quantity of resources required to complete the effort. Issues, risks and
opportunities should also be considered in this analysis. When updates are made to existing
forecasts of the schedule and cost to complete, significant changes are briefed to program
management. Prudent maintenance of the control account-level estimates at completion
ensures that the EAC reflects a valid projection of project costs.
For the comprehensive estimate at completion, many of the same factors included in the
monthly evaluation at the control account level are considered as well as:
Evaluating both direct and indirect performance to date efficiency achieved by

performing organizations for completed work and comparing it to remaining budgets and
the scope of work.
Assessing commitment values for material to complete the remaining work.
Evaluation of subcontractor assessments of cost to complete their efforts.
Estimating future conditions to derive the most accurate estimate at completion; e.g.,
projected rate changes, process improvements that may result in reduced costs, or other
economic factors that may impact future costs.
Comparisons of the estimates to complete and the budgets for the associated effort must be
made frequently enough for management to ensure project performance and resource
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availability will not be adversely impacted. Prudent maintenance of the control account-level
estimates at completion ensures that the EAC reflects a valid projection of project costs.
Projections of future costs to complete must be reported to the appropriate customer in
applicable funding reports, if required.
Typical Attributes:
Timely and comprehensive assessments of the effort required for completing all work
packages and planning packages in the control account plan.
Control account manager updates the EAC to reflect changes in budget and/or master
schedule when there is material significance.
Time-phased estimate to complete based on an analysis of remaining tasks in the

master schedule and projected resource plan.
Control account manager should generate the Estimate to Complete (ETC) at the work
package and planning package level. The sum of the control account managers work
package and planning package ETCs are added to the control account actual cost to
develop the control account EAC. Control account EACs are summarized through the
WBS and OBS to the program and contract level.
Management performance report totals for the EAC should reconcile with the
corresponding time-phased resource plan.
EACs should consider all emerging risks and opportunities within the projects risk
register (or other similar database) that will impact the master schedule and resource
plan for the remainder of the work.
EAC results are communicated to the customer in internal reports and in funding
documents.
Documented process for developing EACs, including subcontractor EAC integration.
Basis of estimates.
Risk and opportunity management plans (identification, analysis, and handling plans).
Operational metrics.
Earned value metrics.
Updated schedule task completion and cost-at-completion forecasts.
Material and subcontractor performance data.
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2.5 Revisions and Data Maintenance

Guideline 28 Incorporate Changes in a Timely Manner
a)
Incorporate authorized changes in a timely manner, recording the effects of such

changes in the budgets and schedules. In the directed effort prior to negotiation
of a change, base such revisions on the amount estimated and budgeted to the
program organizations.
Management Value
A properly maintained performance measurement baseline is crucial to effective program
management. The timely and accurate incorporation of contractual changes ensures that the
information generated from the execution of the baseline plan provides an accurate picture of
progress and facilitates correct management actions and decisions.
Intent
Incorporate the work scope for authorized changes into the performance measurement baseline
in a documented, disciplined, and timely manner. The timely and accurate incorporation of
authorized and negotiated changes into the performance measurement baseline ensures that
valid performance measurement information is generated for the new scope being executed.
Adherence to this guideline helps to ensure that budget, schedule, and work remain coupled.
For unpriced change orders, the contractor will develop its best estimate for planning and
budgeting purposes for incorporation into the performance measurement baseline. Near term
effort should be planned and have budget in control accounts. Far term effort that cannot be
reasonably planned in the near term may be planned in summary level planning packages or
maintained in Undistributed Budget (UB). Until contractual definitization, the near-term work is
continually planned. After definitization, any budget remaining in undistributed budget will be
planned and budgeted within control accounts, summary level planning package packages, or
management reserve, as soon as practical.
Incorporating changes must not arbitrarily eliminate existing cost and schedule variances. Rate
changes and economic price adjustments may be made as appropriate.
Typical Attributes:
Contractual change documents (external). May take various forms, (e.g., contract
modification, letter to proceed from contracts office or legal office, not-to-exceed letter,
change order, engineering change order, delivery order, basic ordering agreement, etc.)
that transmit and authorize the change or addition/deletion to work, budget, and
schedule.
Contractors internal documentation (e.g., change request form, program directive, etc.)
facilitating the change. It should provide the rationale/justification, an approval process,
work scope additions or deletions by integrated product team or WBS, dollars, changes
to schedules, estimate at completion, etc.
Basis of estimate (if not yet negotiated).
Change control logs, including management reserve justification, dollar amount and
receiving WBS; undistributed budget justification, dollar amount, and receiving WBS;
performance measurement baseline dollar amount; and contract budget base total.
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Statement of work (amendments or revisions), WBS (changes if applicable), and WBS

dictionary (additions or deletions to scope).
Work authorization documents authorizing new work scope, schedule, budget and
authorization to proceed, if not already captured by the internal change request process.
Control account/work package/planning package plans showing revised work scope,

duration, and budget.
Master schedules, intermediate schedules (if any), and detailed schedules showing
revised work scope and duration, changes to linkages, etc.
Management reports showing timely incorporation of new work scope.
Contractual change documents.
Change control logs (management reserve, undistributed budget, performance

Control account/work package/planning package plans.
Master schedules, intermediate schedules (if any), and detailed schedules.
Statement of work, WBS, and WBS dictionary.
Management reports.
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Guideline 29 Reconcile Current to Prior Budgets

b)
Reconcile current budgets to prior budgets in terms of changes to the authorized

work and internal replanning in the detail needed by management for effective
control.
Management Value
The reconciliation of current budgets to prior budgets ensures the baseline maintains data
integrity and reconciliation to the contract value.
Intent
Budget changes are controlled and understood in terms of scope, resources, and schedule.
Budgets reflect current authorized work. Budget revisions are made when work is added to the
contract and are traceable from authorized contract target costs to the control account budgets
or from management reserve. Management reserve may be used for authorized work that is inscope to the contract, but out of scope to a control account. Management reserve, therefore,
may not be applied to completed work packages, except to compensate for the effect of routine
accounting adjustments in accordance with the organizations accounting practices.
Undistributed budget account should be distributed within a reasonable length of time
subsequent to contract definitization or the program value finalization. It is recognized that some
circumstances, such as delays in program direction, will affect the timely assignment of
undistributed budget to control accounts.
The use of program budget logs will assist in meeting the reconciliation intent of this guideline.
The ability to track budget values for both the internal and external changes will help in the
maintenance of the performance measurement baseline from program start to completion.
Typical Attributes:
Contractual change documents (external). May take various forms, (e.g., contract
modification, letter to proceed from contracts office or legal office, not-to-exceed letter,
change order, engineering change order, delivery order, basic ordering agreement, etc.)
that transmit and authorize the change or addition to work, budget, and schedule.
Contractors internal documentation (e.g., change request form, program directive, etc.)
facilitating the change. It should provide the rationale/justification, approval process,
work scope additions or deletions by integrated product team or WBS, dollars, changes
to schedules, estimate at completion, etc.
Basis of estimate (if not yet negotiated).
Change control logs including management reserve justification, dollar amount and
receiving WBS; undistributed budget justification, dollar amount and receiving WBS;
performance measurement baseline dollar amount; and contract budget base total.
Statement of work (amendments or revisions), WBS (changes if applicable), and WBS

dictionary (additions or deletions to scope).
Work authorization documents authorizing new work scope, schedule, budget and
authorization to proceed, if not already changed by the internal change request process.
Control account/work package/planning package plans showing revised work scope,

duration, and budget.
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Master schedules, intermediate schedules (if any), and detailed schedules showing
revised work scope and duration, changes to revised work scope and duration, changes
to linkages, etc.
Management reports showing timely incorporation of new work scope.
Contractual change documents.

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Guideline 30 Control Retroactive Changes

c)
Control retroactive changes to records pertaining to work performed that would

change previously reported amounts for actual costs, earned value, or budgets.
Adjustments should be made only for correction of errors, routine accounting
adjustments, effects of customer or management directed changes, or to improve
the baseline integrity and accuracy of performance measurement data.
Management Value
Retroactive changes to the baseline may mask variance trends and prevent use of the
performance data to project estimates of cost and schedule at completion.
Intent
Control retroactive adjustments (including those in the current period), making only routine
accounting adjustments, definitization of contract actions, rate changes, and economic price
adjustments, customer-approved changes, or data entry corrections. Adjustments resulting from
definitization of contract actions should be limited to affected work scope budgets. Changes that
would arbitrarily eliminate existing cost and schedule variance should not be made. Rate
changes and economic price adjustments are normal exceptions.
The cumulative values for the budgeted cost for work scheduled and budgeted cost for work
performed are not adjusted for routine direct or indirect cost rate increases or decreases. This is
necessary to ensure baseline integrity and accuracy of performance measurement data.
Retroactive budget and/or performance adjustments may delay visibility of overall project
variance from plan, thus reducing the alternatives available to managers for project redirection
or termination.
Typical Attributes:
Change control process defines policy regarding retroactive changes that include
conditions for use; prohibitions, approvals, and justifications; and evidence of discipline
and control.
Change control logs record change activity.
Current and previous period dollarized, time-phased baseline plan. Compare the plans
to identify any differences and to verify that all changes have been identified.
Scheduling system reflects schedule inputs concerning times, dates, durations,

percentage complete, etc.
Negative journal entries. When not a result of error corrections or routine accounting
adjustments, they have appropriate explanations.
Earned value input source documents. Negative or inappropriate amounts have

appropriate explanations.
Management performance reports or other management reports. Current period data on

the performance reports reflect any retroactive changes with related explanations.
Change control logs.
Retroactive change control process including approval.
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Guideline 31 Prevent Unauthorized Revisions

d)
Prevent revisions to the program budget except for authorized changes.
Management Value
Changes made outside the authorized baseline control processes compromise the integrity of
performance trend data and delay visibility into overall project variance from plan, thus reducing
the alternatives available to managers for project redirection or revisions.
Intent
Prevent unauthorized revisions to the performance measurement baseline. Any changes to the
project must be approved and implemented following the baseline management control process.
This control precludes the inadvertent implementation of a budget baseline greater than the
project budget. When the performance budget or schedule objectives exceed the project plan
and are recognized in the performance measurement baseline, it is identified as an over-target
baseline (OTB).
The decision to establish an over-target baseline may result due to planning future work,
planning in-process work, and/or adjusting cost or schedule variances. This permits an increase
to the amount of budget for the remaining work. This creates a more realistic amount to
adequately provide for reasonable budget objectives, work control, and performance
measurement.
A thorough analysis of program status is necessary before the implementation of an over-target
baseline. The organization should perform a detailed estimate of all costs necessary to
complete the remaining effort. If the difference between the estimated cost to complete and the
remaining budget is significant, the organization implementing the OTB will give advance
notification to the appropriate parties of the need to increase the remaining budgets. It is
important to consider that both organization and customer management agree to a common
understanding of the over-target baselines impact on the performance expectations.
When the organization and customer project managers are satisfied that the new baseline
represents a reasonable plan for completing the contract, the new baseline becomes the basis
for future performance measurement.
Typical Attributes:
Change control logs reflect changes to the performance measurement baseline and
contract budget base.
Control account/work package/planning package plans reflect approved budget

changes.
Work authorization documents reflect authorized changes to budget.
Time-phased budget run reflects authorized changes to the budget.
Management performance reports or other management reports reflect changes to the


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Statement of Work, WBS, and WBS dictionary.
Management performance reports or other management reports
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Guideline 32 Document PMB Changes

e)
Document changes to the performance measurement baseline.
Management Value
By ensuring that budget and schedule revisions are documented and traceable, the integrity of
the performance measurement baseline is maintained and can be verified. This provides control
account managers with valid control account plans against which to execute and measure
performance.
Intent
The performance measurement baseline should always reflect the most current plan for
accomplishing the effort. Authorized changes must be promptly recorded in the system and
incorporated into all relevant planning. Planning and authorization documents must be updated
accordingly, prior to the commencement of new work.
Typical Attributes:

measurement baseline, and contract budget base) reflect changes from the original
Control account/work package/planning package plans reflect updated schedule and

budget plans for all authorized changes.
Master schedules, intermediate schedules (if any), and detailed schedules reflect
incorporation of latest authorized changes.
Time-phased budget run reflects authorized changes to the budget.
Statement of Work, WBS, and WBS dictionary reflect incorporation of all authorized
changes.
Work authorization documents reflect incorporation of all authorized changes.
Management performance reports or other management reports reflect incorporation of

all authorized changes.

Statement of Work, WBS, and WBS dictionary.
Management performance reports or other management reports.
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3 Example Process Description Compliance Map

3.1 Developing a Compliance Map to the EVMS Guidelines
The purpose of this section and the separate appendix document to this intent guide is to
provide an example and template that can be used as a starting point for a contractor,
subcontractor, or government agency that needs to develop a compliance map to the ANSI/EIA
EVMS Guidelines for their business process.
The example in this section uses guideline 1 to provide a sample description of how a
companys business process complies with the requirements of a given guideline.
The separate appendix document provides a compliance map template for the 32 guidelines
that can be tailored to a given business environment. The compliance section for each guideline
must be completed based on how the company or agency does business.
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3.2 Example Compliance Map

The ACME Corporation
EARNED VALUE MANAGEMENT SYSTEM
PROCESS DESCRIPTION COMPLIANCE TO THE ANSI/EIA-748 STANDARD
Guideline 1 Define Work Scope (WBS)
2.1
Organization
a)
Define the authorized work elements for the program. A work breakdown structure
(WBS), tailored for effective internal management control, is commonly used in this
process.
Intent
A WBS is a direct representation of the work scope in the project, documenting the hierarchy
and description of the tasks to be performed and their relationship to the product deliverables.
The WBS breaks down all authorized work scope into appropriate elements for planning,
budgeting, scheduling, cost accounting, work authorization, measuring progress, and
management control. The WBS must be extended to the level necessary for management
action and control based on the complexity of the work. At a minimum, the WBS is extended to
the level or levels at which control accounts are established. A WBS dictionary is typically used
to define the work scope for each unique element in the WBS.
Typical Attributes:
Only one WBS is used per project and it contains all project work, including revisions for
authorized changes and modifications.
The WBS contains all contract line items and end items.
The WBS identifies all WBS elements specified for external reporting.
The WBS is extended at a minimum to the level(s) at which control accounts are
established.
The WBS elements should collectively provide a complete definition of work scope
requirements.
The WBS may evolve as the project requirements change.
Work Breakdown Structure (WBS).

WBS dictionary (may or may not be used, but a method to reconcile the statement of
work to the WBS structure must be demonstrated).
Earned Value Management System Description Compliance

The development and maintenance of the WBS for each project is described in Section 2 of
ACME corporation EVM system description. Each project must comply with the requirements
described in Section 2. In summary, the requirements are as follows.
The WBS must be created and maintained in ACMEs corporate EVM system.
A single WBS structure must be developed and maintained per project for the entire life
of the project.
The WBS structure includes fields to identify and include such details as a:
o Unique WBS number for each WBS element.
o Short description.
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o
o
o
Parent element identification (with the exception of the top WBS element).
Contract line item number for cross-reference to the Statement of Work.
Reporting level required for internal management and customer reporting
purposes.
o The lowest level in the WBS is the control account level (typically level 4 or 5 in
the WBS structure, depending on the needs of the project).
The WBS Dictionary online form may be used to describe the scope of work for all WBS
elements. This description should include, but is not limited to, specific details such as:
o End result or expected work product.
o Related work to identify dependencies between elements of work.
o Risk and opportunity factors.
o Assumptions or limitations.
o Technical specifications.
o Related documents or other materials that are required for the work team to
successfully complete their assignment.
Applicable process documents and desktop instructions are listed below. Who is responsible for
what is also noted.
WBS Audit. The project control team uses this process and related checklist to verify
that the WBS is complete and there is a one-to-one relationship between the WBS
elements and the Statement of Work. It is also used to verify that all WBS elements have
an entry in the WBS Dictionary and that the work scope details are clear and specific.
This audit is conducted as part of the initial WBS development process before the
performance measurement baseline is set or when any contract modifications impact the
scope of work.
Maintaining the WBS. Desktop instructions used by the project control team for entering
and maintaining the WBS data in the ACME EVM system. Only the project control team
members have the authorization to create or modify the WBS data.
Maintaining the WBS Dictionary. Desktop instructions used by the control account
managers and IPT team members to enter and maintain the WBS Dictionary data.
Maintaining Control Accounts. Desktop instructions for entering and maintaining the
control account data in the ACME EVM system. Only the project control team members
and the assigned control account person have the authorization to modify the control
accounts in the system.
Outputs available from the ACME EVM system for each project include:
The work breakdown structure.

WBS Dictionary.
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ANSI/EIA-748-C Intent Guide

Intent Guide Change History Log

December 2005 update reflected a comprehensive review of the content

January 2006 update modified the copyright statement to conform to the

September 2006 update incorporated comments throughout the document

Second release of the Intent Guide was a culmination of comments from

June 2009 update reflected the ANSI/EIA-748 reaffirmation process for

2014 NDIA IPMD

Guideline 5, Intent edits discussing one or more responsible

Guideline 10, Attribute 1 was deleted.

Guideline 21, Intent, characteristics list, item 2 edits discussing material

Guideline 27, Attribute bullet 4 edits to reiterate actual costs at the

Third release reflected DCMA agreement for updates to Guidelines 5, 10,

Guideline 5, Intent, second paragraph. Text was added that read:

Guideline 10, Typical Attributes. Added an attribute bullet (new first

ANSI/EIA-748-C Intent Guide

bullet) that discussed the control account plans (CAPs) representing

Guideline 21, Typical Attributes, bullet 4. Corrected the algorithms for

2014 NDIA IPMD

August 2012 update made changes to Guidelines 8 and 30.

Guideline 8, Intent. Paragraphs were added at the end of the Intent

April 2014 update reflected the reaffirmation of the ANSI/EIA-748 and

Incorporated updates from the ANSI/EIA-748 reaffirmation process

Made consistency and clarification edits throughout and applied the

Removed specific references to named DID reports to use more

Incorporated ease of use updates such as adding short guideline

Changed approach to Appendix A (compliance template) so it is a

Incorporated comments from industry, the intelligence community, and

Changed all NDIA PMSC references to IPMD.

Relabeled Section 1, Purpose and Scope to Introduction and split into

Added a new Figure 3 to Guideline 8.

Added an Intent Guide Change History Log.

ANSI/EIA-748-C Intent Guide

Intent Guide to the EVMS Guidelines .................................................................................. 4

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ANSI/EIA-748-C Intent Guide

Guideline 29 Reconcile Current to Prior Budgets ................................................... 46

Example Process Description Compliance Map .................................................................52

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ANSI/EIA-748-C Intent Guide

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ANSI/EIA-748-C Intent Guide

1.3 Applying the Guidelines to the Program Phases

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ANSI/EIA-748-C Intent Guide

Figure 1 Applying the guidelines to the program phases

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ANSI/EIA-748-C Intent Guide

2 Intent Guide to the EVMS Guidelines

The WBS may evolve as the project requirements change.

Objective evidence may be found in these typical outputs:

Work Breakdown Structure (WBS).

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ANSI/EIA-748-C Intent Guide

Guideline 2 Define Project Organization (OBS)

Identify the program organizational structure, including the major subcontractors

All authorized work is assigned to organizational elements.

Objective evidence may be found in these typical outputs:

Organization Breakdown Structure (OBS).

OBS intersections with the WBS.